177. Telegram From the Department of State to the Embassy in Saudi Arabia1
94163. For Ambassador from the Secretary. Subject: Financing Jordan’s Air Defense. Ref: (A) Jidda 2622, (B) Jidda 2643.
1. We have such a short time left in which to help arrange a resolution of the Jordanian-Saudi Hawk funding impasse that I have decided to send a message to Prince Fahd requesting his early response to the proposals you have previously conveyed to the Saudi Government.
2. In delivering the message, you should emphasize to Fahd that, based on our recent discussions with Hussein and his military advisers, [Page 589] we are convinced he will consider no alternative other than one that provides Jordan with a minimum of 14 Hawk batteries and 100 Vulcan guns. You should add that we therefore no longer regard any of the other options covered by our earlier proposals as practicable, and that we are now seeking Saudi agreement to finance the dollars 520 million package, from which we have eliminated all lower-priority equipment, training and services in order to cut costs to the absolute minimum. You should indicate that if SAG can agree to finance this austere 14 battery/100 gun system and join with us in conveying this news to King Hussein, there is a very good chance that the problem can be overcome and the consequences of Jordan’s turning elsewhere avoided.
3. You can assure Fahd that there is no way in which the Jordanians can acquire from us the basic equipment they consider necessary at a cost less than 520 million dollars. The figure of approximately 300 million that was occasionally mentioned at the time the sale was being considered last summer covered only the weapons themselves plus some other basic equipment. As he knows, such a highly sophisticated system requires a great deal of additional equipment such as radars, communications, control systems, and so forth in order to be effective. It was this additional equipment which, together with related services, brought the original price to more than 700 million dollars for the full system. You should also point out that, much as we would like to help with financing this sale, all the funds presently available to us for Jordan are fully committed to other high priority Jordanian military purchases. You might also emphasize that U.S. military assistance to Jordan since 1967 has been substantial, and we have been seeking totals of dollars 175 million for FY 76 and dollars 145 million for FY 77 (grants and credits).
4. Begin text:
Your Royal Highness:
I greatly appreciate our recent exchanges on the difficult situation in Lebanon. I am reassured by the fact that our two governments appear to share a common view of the dangers there. It is in this spirit that I would like to share with you my thoughts about another serious problem of concern to our two countries. This involves the long-run consequences for Jordan, but also for Saudi and U.S. interests, if Jordan is unable to procure the Hawk/Vulcan air defense system we agreed to last year to sell to it. Your Highness will perhaps recall the major and ultimately successful effort we made to overcome resistance in Congress to this sale, which was strongly opposed by Israel.
Our decision to sell this air defense system to King Hussein was based on our belief—which I know you share—that a moderate, stable Jordan is essential if a lasting, durable peace is to be achieved in the [Page 590] Middle East and if the gains we have made in reducing Soviet influence in the area are to be preserved. Our decision also took into account the fact that Jordan is much weaker than all its neighbors in its ability to withstand attack from the air.
King Hussein has told us he deeply appreciates your government’s willingness to provide dollars 300 million for the air defense system. We have examined what could be provided for this sum, however, and have concluded that it would purchase a system comprising only six Hawk batteries and approximately 36 Vulcan guns. This is significantly less than the 14 Hawk batteries and 100 Vulcan guns which King Hussein still considers the absolute minimum weaponry required to protect Jordan’s key population and strategic centers.
King Hussein apparently now believes that his only recourse is to seek comparable air defense equipment from the Soviet Union, probably through arrangements with Syria.
I am sure you share my concern about the far-reaching impact that such a step by King Hussein would have on both our countries. For our part, we have cautioned King Hussein that it would lead to a critical reexamination by the American public and the Congress of our traditional relationship with Jordan. King Hussein is acutely conscious of this risk, but must weigh against it the risk of disappointing the expectations of his loyal army.
I recognize that the arrangements for financing the purchase of the Hawk/Vulcan system are mainly a matter for consideration between your government and Jordan. Because of our concern about the serious consequences for all of us if such an arrangement does not work out, however, we have developed alternative proposals which Ambassador Porter has conveyed to you. I hope you will give your most urgent and sympathetic consideration to enabling King Hussein to purchase an air defense system commensurate with what he regards as the minimum necessary to protect Jordan against attack from the skies.
I also hope that you will be able to give me even your initial thoughts as soon as possible. Our problem is that if this matter cannot be resolved by April 30, existing contracts with American suppliers of Jordan’s air defense equipment, which we have extended for the full period permissible under our regulations, will have to be terminated. If the program were to be reinstituted at a later date, the contracts would have to be renegotiated and the total costs would be considerably higher, owing to inflation.
Ambassador Porter will be prepared to answer any questions you may have, and we will of course respond to any suggestions or other considerations you may care to offer.
[Page 591]I send Your Royal Highness my very best wishes.
Henry A. Kissinger
End text.
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Summary: Kissinger sent Prince Fahd a letter on the Jordanian air defense issue.
Source: National Archives, RG 59, Central Foreign Policy File, D760147–0242. Secret; Immediate; Exdis. Drafted by Thomas Carolan (NEA/ARN) and Draper; cleared in PM, and DOD/ISA, and by Fish and Atherton; approved by Kissinger. Repeated Immediate to Amman. Telegrams 2622 and 2643 from Jidda, April 11, are ibid., D760137–1173 and D760138–0059, respectively.
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